Winnebago County s Criminal Justice System: Trends and Issues Report

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1 1 Winnebago County s Criminal Justice System: Trends and Issues Report Center for Criminal Justice Research, Policy and Practice The Center promotes fair, informed, effective and ethical criminal justice approaches through collaborative interdisciplinary research, professional development and targeted projects.

2 2 Table of Contents Introduction... 2 Winnebago County s Criminal Justice System... 3 Law Enforcement & Policing... 3 Courts... 4 Corrections... 4 Reported Crime and Arrests in Winnebago County... 6 Crimes Reported in Winnebago County... 7 Criminal Court Filings and Dispositions in Winnebago County Sentencing of Those Convicted of a Felony in Winnebago County Changing Correctional Populations Reentry and Recidivism of Those Released from Prison Who Return to Winnebago County Conclusions and Future Research This report was written and produced by Loyola s Center for Criminal Justice Research, Policy and Practice with the support of the John D. and Catherine T. MacArthur Foundation, and in collaboration with the Illinois Criminal Justice Information Authority, the Region 1 Planning Council, and members of the Winnebago County Criminal Justice Coordinating Council. Introduction In December 2016, the Illinois State Commission on Criminal Justice and Sentencing Reform recommended that the Illinois Criminal Justice Information Authority (ICJIA), the State s criminal justice research and grant-making agency, provide technical assistance to local jurisdictions to form county level Criminal Justice Coordinating Councils (CJCCs). Loyola University Chicago s Center for Criminal Justice Research, Policy and Practice has collaborated with ICJIA to support the development of these CJCCs. CJCCs convene elected and appointed executive-level policymakers, victim and other non-profit organizations and members of the public to collaboratively address issues facing the justice system and its constituent agencies. CJCCs use data-guided and structured planning processes to identify, analyze, solve, and manage justice system issues. Through a competitive process, Winnebago County was selected to participate in a pilot project whereby technical assistance in the form of research, analysis, and facilitated strategic planning

3 3 would be provided by the ICJIA and Loyola University. This report is one of the first stages of this process and is designed to provide criminal justice practitioners, policy makers, community organizers, and members of the general public with an understanding of how the adult criminal justice system is organized, how it functions, and how each component of the system is interrelated to the others. The data utilized in this report come exclusively from data and information available through state-level reporting mechanisms in Illinois, and thus allow for some comparisons to other jurisdictions in Illinois. 1 While more current, and more detailed data are available locally, part of the current effort is to better understand the utility of these state-level data for planning purposes. Winnebago County s Criminal Justice System Winnebago County, located in northern Illinois on the Wisconsin border, is the 7th largest county in Illinois, with an estimated population of 285,873 residents in Between 2010 and 2016, Winnebago County s population decreased 3%. Although Winnebago County has 17 cities and towns, the City of Rockford is by far the largest, accounting for 53% (152,871 residents) of the entire population of Winnebago County in Indeed, Rockford is the 3 rd largest city in Illinois, smaller only to Chicago and Aurora. The criminal justice system in Winnebago County can be broadly divided into three major components: law enforcement and policing, courts, and corrections. Within each of these general components are a number of different agencies, operating with specific goals and purposes, and also operating across different branches and levels of government. Law Enforcement & Policing When crimes are reported to the police, or when police observe criminal behavior during the course of patrol or investigations, the arrest of an individual is the starting point for the rest of the justice system. As such, arrests impact the workload and activities of all of the other justice system agencies in Winnebago County. The majority of policing services are provided by municipal police departments. The Winnebago County Sheriff s Office provides policing services to unincorporated areas of the county as well as to specific towns in Winnebago County. The County Sheriff also provides security for the courts and operates the county jail. Of the 11 incorporated cities and towns in Winnebago County, nine operate their own police departments, with the City of Rockford being the largest of these. 2 Each municipal police department has a chief of police, appointed by the mayor of each city. The Winnebago County Sheriff s Office is led by an elected Sheriff. In addition to these municipal and county police agencies, there are a number of other police departments with very specific jurisdictions, such as the Rockford Park District Police and the Rockford Airport Police. There 1 Comparisons in this report are made to Illinois outside of Cook County because Cook County trends tend to dramatically influence statewide patterns in crime and justice system activities. For purposes of consistency, analyses of changes over time compare the most recent year of available data to the year The following incorporated cities and towns are in Winnebago County: Cherry Valley, Durand, Loves Park, Machesney Park, New Milford, Pecatonica, Rockford, Rockton, Roscoe, South Beloit, and Winnebago. All but New Milford and Machesney Park operate their own police department.

4 4 is also a multi-jurisdictional policing task force that operates in the Winnebago County area. The State Line Area Narcotics Task-force (SLANT) is a multi-jurisdictional drug task force that involves the cooperation and resource sharing among state, county and municipal law enforcement agencies in Winnebago County as well as a number of neighboring counties. 3 These law enforcement agencies are responsible for responding to reported incidents of criminal activity as well as engaging in patrol and investigations to prevent, detect, and uncover criminal activity. Courts When an individual is arrested in Winnebago County, their case is referred to the Winnebago County State s Attorney s Office, which is led by an elected State s Attorney. Each county in Illinois has a separately elected State s Attorney. The Winnebago County State s Attorney s Office reviews arrest reports by the law enforcement agencies in Winnebago County to determine if criminal charges should be filed in court, and if so, they initiate a criminal case by filing a case with the Office of the Winnebago County Clerk of the Circuit Court. The case is then adjudicated within the circuit court. Winnebago County is part of Illinois 17 th Judicial Circuit, which includes Winnebago County and Boone County. Illinois has 23 separate judicial circuits, some of which include single counties, while others, like the 17 th Circuit, include multiple counties. Within each judicial circuit are elected Circuit Court Judges and appointed Associate Judges. Each judicial circuit is led by a Chief Judge, selected by and from the Circuit Court Judges within the judicial circuit. The Circuit Judges of the circuit also appoint a Public Defender, who oversees the Winnebago County Public Defender s Office, an agency responsible for providing legal services to indigent persons arrested and charged with crimes in Winnebago County. The 17 th Judicial Circuit, along with five other circuits in northern Illinois, make up Illinois Second Appellate District, which hears cases on appeal from the circuit courts within the district. The Winnebago County Sheriff s Office provides security to the Winnebago County courts, both in the courthouse as well as in the individual courtrooms. Corrections The corrections component of the criminal justice system includes both institutional as well as community-based correctional agencies responsible for supervising and detaining those charged with crimes as well as those convicted of offenses. These agencies have varying functions and operate at different levels and branches of government. For example, the Winnebago County Sheriff s Office operates the Winnebago County Jail, which serves multiple functions. First, the Winnebago County Jail serves as a centralized booking facility for the county, meaning all adults arrested in Winnebago County are processed through the jail prior to their release or appearance at bond court. For those individuals who cannot post or are denied bail, the Winnebago County Jail serves as a pre-trial detention facility. Individuals can also be sentenced to serve time (less than a year) in the Winnebago 3 Illinois Criminal Justice Information Authority (2004): Assessing Illinois Metropolitan Enforcement Groups and Task Forces: A Profile of the State Line Area Narcotics Team.

5 5 County Jail upon conviction. For those individuals convicted of a felony-level offense, depending on the nature of their offense, they can be sentenced either to supervision in the community (probation) or to prison (for a year or more). Offenders sentenced to probation in Winnebago County are supervised and referred to services by the Winnebago County Probation and Court Services Department. The Probation and Court Services Department is funded through a mix of county and state resources, and is under the judicial branch of government. When a sentence to probation is imposed, the individual is supervised in the community by probation officers. In addition to supervision, the conditions of probation often include payment of fines, restitution, probation supervision fees, as well as participation in rehabilitative programs. Through the Resource Intervention Center, those on probation in Winnebago County are able to access a wide array of services and programs designed to address their criminal behavior and reduce their risk to continue their involvement in crime. If an individual fails to meet the terms of their probation or commits a new crime while under supervision, their probation may be revoked and they may serve the prison time associated with their sentence. If someone convicted of a felony in Winnebago County is sentenced to prison, upon the imposition of that sentence the offender (if male) is transferred by the Winnebago County Sheriff s Office to the Illinois Department of Corrections (IDOC) Reception and Classification (R&C) Center at the Stateville Correction Center in Crest Hill, Illinois. Adult females are transferred to the Logan Correctional Center R&C in Lincoln, Illinois. After inmates have been processed through the R&C, they are then transferred to one of Illinois 27 prisons based on their security classification and needs. Inmates then serve their prison sentence, and upon release, are supervised in the community under Mandatory Supervised Release (MSR, parole ) by parole officers that work for IDOC. Under Illinois sentencing stricture, inmates are released from prison after they have completed serving their courtimposed prison sentence, minus any sentence credits they may receive for time served in pre-trial detention, good conduct credits, or credits to their sentence for completing rehabilitative programming while in prison. Thus, while Illinois Prisoner Review Board (PRB) sets the conditions of MSR (i.e., requirements to participate in programming in the community), under Illinois law they do not have the authority to determine whether someone should be released from prison. Individuals released from prison must have an approved host site where they will live, and most return back to the community where they lived before going to prison. The length of time individuals are supervised on MSR is set by state statute, and corresponds to the felony class of the crime for which they were sentenced to prison, generally ranging from 1 year (for Class 3 and 4 felonies) to 3 years (for Murder and Class X felonies). For sex offenders, their MSR period is indeterminate, with a minimum of 3 years and up to lifetime supervision. Those sentenced to prison for domestic violence offenses are

6 6 supervised on MSR for 4 years. If during the period of MSR an individual violates the conditions of their supervision set by the PRB, or is rearrested for a crime, their MSR can be revoked and they can be returned to prison to serve out a portion, or the remainder of, their MSR period. Reported Crime and Arrests in Winnebago County To understand how the justice system responds to crime in Winnebago County, it is first important to understand how much crime occurs and the number of individuals subsequently arrested. Importantly, research conducted by the U.S. Department of Justice reveals that not all crime occurrences in the United States are reported to the police. For example, the 2015 National Crime Victimization Survey (NCVS) estimates that 45% of serious violent crime and 65% of property crime was not reported to the police. 4 Reporting variations also exist within large crime categories (e.g., violent and property). Nationally, the majority of thefts (property) and sexual assaults (violent) are not reported to the police while the majority of motor vehicle thefts (property) and robbery (violent) are reported. Thus, when considering how much crime is reported to the police it is important to keep in mind that this represents only a portion of the crime that actually occurs. One of the primary ways crime in communities is measured is through a reporting system called the Uniform Crime Reporting (UCR) program, whereby individual law enforcement agencies report specific data to the Illinois State Police. 5 These data include information about the number and type of crimes reported to the law enforcement agency as well as the number and type of arrests made by the agency. Although not exhaustive of all crimes, a Crime Index, consisting of eight crimes that are considered to be the most serious and consistently defined across jurisdictions in the United States, has been used since the 1930s. Specifically, there are four crimes used to calculate a Violent Crime Index, including: murder, rape (termed in Illinois as criminal sexual assault), robbery and aggravated assault/battery. 6 In addition, there are four crimes used to calculate a Property Crime Index, including: burglary, larceny/theft, motor vehicle theft, and arson. Combined, these violent and property Index offenses are used to compute the total Crime Index. While violent and property Index offenses usually come to the attention of the police through reports by crime victims and are consistently defined across the country, there are a number of other crimes that are often only detected by the police or legally defined differently across the country, such as drunk driving, drug sales and possession, and illegal possession of firearms. Thus, there are many offenses that are not part of the Crime Index and only known to the justice system when arrests are made since rarely do citizens call the police to report these types of offenses. 4 See for a detailed description of the National Crime Victimization Survey. 5 See for a detailed description of the Uniform Crime Reporting Program. 6 In 2014 the crimes of Human Trafficking-Commercial Sex Acts and Human Trafficking-Involuntary Servitude were added to the Crime Index. In 2014 and 2015, no offenses or arrests under these two categories were reported in Winnebago County through the UCR program.

7 7 Crimes Reported in Winnebago County In Winnebago County, the majority (84% between 2005 and 2015) of all Index crimes reported to the police involved property Index crimes (Figure 1), a pattern similar to Illinois jurisdictions outside of Winnebago County, excluding Cook County. 7 Because these property crimes account for such a large portion of all Index crimes reported to the police, trends in property Index crime tends to influence the total Index crime rate in Winnebago County. Between 2010 and 2015, the number of property Index crimes reported to the police in Winnebago County decreased 31% (Figure 2), a trend similar to Illinois jurisdictions outside of Winnebago County, excluding Cook County. 8 In 2015, the property Index offense rate in Winnebago County was 2,883 per 100,000 residents, or 81% higher than the rate of 1,572 per 100,000 residents in Illinois outside of Cook and Winnebago counties that year. In 2015, the City of Rockford accounted for 71% of all property Index crimes reported to the police in Winnebago County. Figure 1. Crime Reported to the Police in Winnebago County, Robbery 4.0% Aggravated Assault 10.2% Criminal sexual assault 1.3% Murder 0.2% Arson 0.6% Burglary 21.3% Motor vehicle theft 5.0% Theft 57.5% Source: Analyses by Loyola s Center for Criminal Justice Research, Policy & Practice of aggregate, published I-UCR data. 7 Excluding Cook and Winnebago counties, property crime accounted for 81% of all reported Index crime from 2005 to Comparisons are made to Illinois outside of Cook County because Cook County trends tend to dramatically influence statewide patterns in crime and justice system activities. 8 Between 2010 and 2015, in Illinois outside of Cook and Winnebago counties, the number of property Index crimes decreased by 25%.

8 8 Figure 2. Uniform Crime Report (UCR) Offense and Arrest Numbers for Property Index Crimes in Winnebago County, ,000 20,000 15,000 10,000 5,000 0 Property offenses Property arrests Source: Analyses by Loyola s Center for Criminal Justice Research, Policy & Practice of aggregate, published I-UCR data. Although violent Index crimes account for a relatively small proportion (16% between 2005 and 2015 [Figure 1]) of all Index crimes reported to the police in Winnebago County, these involve the most serious offenses the justice system handles, including murder, battery with a firearm, and criminal sexual assault. Between 2010 and 2015, the total number of violent Index crimes reported to the police in Winnebago County increased 1% (Figure 3). By comparison, the total number of violent Index crimes reported to the police in Illinois outside of Cook and Winnebago counties decreased 20% between 2010 and In 2015, the violent Index offense rate in Winnebago County was 937 per 100,000 residents, or four-times higher than the rate of 226 per 100,000 residents in Illinois outside of Cook and Winnebago counties that year. In 2015, the City of Rockford accounted for 87% of all violent Index crimes reported to the police in Winnebago County. 9 Further, in recent years there have been substantial increases in specific violent offenses. For example, although aggravated battery with a firearm accounted for 11% of all Index crimes reported to the police in Rockford, the number of these offenses increased 40% between 2014 and Source: Analyses by Loyola s Center for Criminal Justice Research, Policy & Practice of aggregate, published I-UCR data.

9 9 Figure 3. Uniform Crime Report (UCR) Offense and Arrest Numbers for Violent Index Crimes in Winnebago County, ,000 2,500 2,000 1,500 1, Violent offenses Violent offense arrests Source: Analyses by Loyola s Center for Criminal Justice Research, Policy & Practice of aggregate, published I-UCR data. Arrests in Winnebago County When crimes are reported to the police, or when police observe criminal behavior during the course of patrol or investigations, the arrest of an individual is the starting point for the rest of the justice system and impacts the workload and activities of all of the other justice system agencies in Winnebago County. There are a number of factors that can influence the number and rate of arrests, including the amount of crime, the nature of crime and victimization, and what police departments and officers focus their resources and attention towards. For example, if crime decreases, that will likely lead to fewer arrests. Further, if crimes are reported, but police have little evidence to work with or victims are unable to provide the police with information regarding the perpetrator, making an arrest in the case will be more difficult. Finally, if there are specific criminal behaviors that the public demands the police do something about, such as visible signs of drug activity, prostitution, or drunk driving, the police may increase their attention towards these offenses in response to these expectations from the public, resulting in dramatic increases in arrests for some crimes. In general, between 2010 and 2015, the trends in arrests in Winnebago County for property Index crimes have mirrored the number of these offenses reported to the police; reported property Index

10 10 offenses decreased 31% and arrests for property Index offenses fell 33%. On the other hand, while reported violent Index offenses increased 1% between 2010 and 2015, arrests for these offenses fell about 25%. Measuring crime clearance rates with just aggregate offense and arrest data has a number of limitations. However, comparing the number of reported offenses that result in an arrest to those that do not can provide a rough measure of how effective police are at solving crimes. Roughly 21% of property Index offenses and 19% of violent Index offenses reported to the police in the past few years ( ) in Winnebago County resulted in an arrest. By comparison, in Illinois outside of Cook and Winnebago Counties the property crime clearance rate was 24% while the clearance rate for violent crime was 49% during that time period. Thus, while the clearance rate for property crimes is similar, the clearance rate for violent crimes it is much lower in Winnebago County. This is most likely due to differences in the nature of the violent Index crimes (i.e., the degree to which victim and offender know each other) across the regions, which impacts the ability to arrest offenders. In addition to utilizing aggregate data reported through the Uniform Crime Report (UCR) program, it is possible to examine trends in arrest and characteristics of arrestees in more detail by using information collected during the processing of an individual through the justice system. In Illinois, when law enforcement agencies carry out a custodial arrest (an arrest that involves the fingerprinting of an individual), specific information about that arrest is reported to the Illinois Criminal History Record Information (CHRI) system, which comprises the criminal history record for each individual arrested in Illinois and is maintained by the Illinois State Police. The advantage of this information is that it contains information on arrests for all crimes, 10 and is not restricted to only the Index offenses. Further, unlike the aggregate UCR data, which lacks any information regarding the age, race or gender of the arrestee, the CHRI data contain this information, allowing for a better understanding of the characteristics of those arrested in Illinois. The CHRI data reported to the Illinois State Police by law enforcement agencies in Winnebago County reveal similar trends to the Index crime arrest data. Between 2010 and 2016, arrests for all violent crimes decreased 15%, while arrests for all property crimes fell 38% and arrests for drug-law violations decreased 23%. 11 Although arrests for drug-law violations decreased across all categories 10 State regulations require that police agencies submit arrest fingerprint cards to the Illinois State Police (ISP) within 24 hours of an arrest for all felony and Class A and B misdemeanor offenses. These contain not only the fingerprints of arrestees, but also arrestee demographic and arrest charge information. See for a detailed description of the Illinois Criminal History Record Information reporting requirements. 11 Source: Analyses by Loyola s Center for Criminal Justice Research, Policy & Practice of Criminal History Record Information (CHRI) data generated and provided by the Research and Analysis Unit, Illinois Criminal Justice Information Authority.

11 11 of offenses including both the Cannabis Control Act and Controlled Substances Act, and for possession and sale/delivery offenses, the decrease was much larger for cannabis offenses than for Controlled Substance Act offenses (Figure 4). 1,200 Figure 4. Trends in Arrests for Drug-law violations in Winnebago County 1, Controlled Substances Act Cannabis Control Act Source: Analyses by Loyola s Center for Criminal Justice Research, Policy & Practice of aggregate, published I-UCR data. Under Illinois law, crimes are classified as either misdemeanors or felonies. From a legal standpoint, felony offenses are more serious since a conviction for these offenses can result in a prison sentence, and a felony conviction has potentially significant implications for employment, housing, and eligibility for various government services. When arrest trends were examined specifically to differentiate between misdemeanor versus felony offenses, different patterns were evident. Although arrests for both felonies and misdemeanors decreased between 2010 and 2016, the decrease in arrests for misdemeanor crimes was much larger (down 37%) than the drop in felony arrests (down 15% [Figure 5]). Further, the decrease in arrests for the least serious felony classes (Class 3 or 4 felonies) was much larger than the drop in arrests for the more serious felony classes (Class 2 or higher felonies). Specifically, between 2010 and 2016, arrests for Class 3 and 4 felonies decreased 21%, while arrests for Class 2 or higher felonies fell by only 3%. Thus, while there are fewer

12 12 arrests entering the justice system in Winnebago County, a larger share of those arrests appear to involve more serious, felony-level crimes and a larger share are violent offenses. Figure 5. Arrests in Winnebago County, by Arrest Class Felony Misdemeanor Source: Analyses by Loyola s Center for Criminal Justice Research, Policy & Practice of CHRI data generated and provided by the Research and Analysis Unit, Illinois Criminal Justice Information Authority. *Data omitted due to apparent reporting error in 2007 Another apparent trend in the characteristics of arrests in Winnebago County is that a substantial portion of the decrease in arrests between 2010 and 2016 was the result of fewer arrests of younger adults, specifically those between the ages of 18 and 24. This population is often referred to as emerging adults due to their chronological age being that of an adult, but research has shown that cognitively this age group still tends to exhibit immaturity when it comes to impulsivity and decision making. The 2016 arrest rate of 18 to 24 year olds in Winnebago County was 849 arrests for every 10,000 residents in that age group, 34% lower than in By comparison, the 2016 arrest rate of 25 to 44 year-olds in Winnebago County was 518 per 10,000 residents in that age group (or almost 40% lower than the arrest rate of the emerging adults). During the period from 2010 to 2016, the arrest rate of 25 to 44 year-olds in Winnebago County fell by 18%. Finally, the arrest rate in Winnebago County of those over the age of 44 was relatively low by comparison and was down 29% between 2010 and 2016.

13 13 Over the period examined there has been little change in the distribution of arrestee characteristics in terms of gender (roughly 70% of arrestees in Winnebago County are male), and roughly 48% of those arrested in 2016 were identified as non-white, up slightly from the 44% in It is also possible to examine the long-term trends in arrests for drug-law violations through data reported to the UCR program in Illinois. These analyses are useful to illustrate how public expectations for police to address specific issues can result in large increases in arrests for specific crimes. During the 1980s concern was raised at the national level about the dangers of drug use and the illicit drug market, and the prevailing view was that an appropriate response to this behavior and market would be to increase enforcement efforts and focus on this behavior. The response at the local level across most cities in the United States was to increase the enforcement of drug-laws, particularly those involving substances other than marijuana, such as cocaine, heroin and methamphetamine. In Illinois, the illegal possession and sale of these substances are articulated in Illinois Controlled Substances Act, while offenses involving marijuana are classified under the Cannabis Control Act. In Winnebago County, arrests for violations of the Controlled Substances Act increased dramatically during the late 1980s and early 1990s (Figure 4), and fueled a significant amount of the increases in the workload and activities of other criminal justice agencies in the county during that period. For example, prior to 1989 there were fewer than 100 arrests in Winnebago County annually for violations of the Controlled Substances Act. However, by 1996, more than 850 arrests were made in Winnebago County for offenses under this Act an 850% increase from the 90 arrests made in Following this peak in arrests for the Controlled Substances Act in 1996, arrests for these offenses decreased, and fell 22% between 2010 and 2015, when they totaled less than 400. By comparison, Illinois outside of Cook and Winnebago counties saw an 11% increase for arrests for Controlled Substances Act offenses between 2010 and Criminal Court Filings and Dispositions in Winnebago County When police arrest an individual in Winnebago County, the Winnebago County State s Attorney s Office reviews the arrest charges, determines if filing charges in the Circuit Court are warranted, and, if so, the appropriate charges to be filed. The State s Attorney s Office has a great deal of discretion in deciding whether to file a criminal charge and what type and severity of charge to file. Broadly, the circuit courts and Illinois criminal law distinguishes between misdemeanor and felony-level offenses, and this classification has implications both for the processes used to handle the cases in court as well as the potential sentences that can be imposed upon conviction.

14 14 The total number of cases filed civil, domestic relations, criminal, quasi-criminal, and juvenile- in Winnebago County in 2016 was 62,496, of which 13% (8,381 cases) were criminal cases. 12 These criminal cases included felony, misdemeanor, and driving under the influence of alcohol (DUI) cases. Thus, it is important to keep in mind that the proportion of criminal cases handled by the circuit court in Winnebago County is a relatively small percent of the overall cases filed and disposed of in the courts. Misdemeanor court filings in Winnebago County have historically outnumbered felony filings by a 4 to 1 ratio. However, between 2010 and 2016 the number of misdemeanor filings decreased more than the number of felony filings decreased. As a result, the gap between felony and misdemeanor filings has narrowed and misdemeanor filings now outnumber felony filings only slightly (1.1 to 1). This shift can be partly explained by the fact that, as described earlier, arrests for misdemeanor-level offenses have decreased more than felony arrests. Between 2010 and 2016, misdemeanor case filings in Winnebago County fell 26%, which was, again, consistent with the decrease in misdemeanor arrests seen during that period. This decrease in misdemeanor filings in Winnebago County is also consistent with the trends seen in Illinois outside of Cook and Winnebago counties, where they also decreased 26% between 2010 and The long-term trend in the number of felony cases filed in Winnebago County reveals a large and steady increase in felony filings during the 1980s, 1990s and into the 2000s, consistent with increases in crime and arrests in the 1980s and 1990s, and increases in arrests for felony drug-law violations (Figure 6). Between 1987 and 1996, felony filings in Winnebago County increased 149% from 1,380 to 3,441 and increased another 49% from 1996 to nearly The number of felony filings peaked at 5,164 in 2008 before beginning to decline. Between 2010 and 2016, felony filings in Winnebago County decreased 15%, again, consistent with the decrease in felony arrests during that period. Further, this trend in felony filings in Winnebago County is also similar to the trend experienced in Illinois outside of Cook and Winnebago counties, where they decreased 5% between 2010 and Of the felony cases filed in Winnebago County each year, the majority result in the defendant being convicted. During 2016, 61% of the felony defendants in Winnebago County who had their cases disposed of were convicted of a felony offense, a rate similar to Illinois outside of Cook and Winnebago counties. 13 Most of the felony cases that did not result in a conviction were dismissed by the State s Attorney s Office, usually because it was determined there was not sufficient evidence to 12 Source: Analyses by Loyola s Center for Criminal Justice Research, Policy & Practice of aggregate, published data from the Administrative Office of the Illinois Courts Annual reports. 13 Source: Analyses by Loyola s Center for Criminal Justice Research, Policy & Practice of aggregate, published data from the Administrative Office of the Illinois Courts Annual reports.

15 15 obtain a conviction, witnesses were not willing to testify, or it was determined that pursuing a conviction was not in the interests of justice. Most of those who were convicted pled guilty to the crime, and very rarely were defendants charged with a felony found not guilty as a result of a trial. Over the past 15 years, 98% of all felony convictions in Winnebago County were the result of a guilty plea, and less than 3% of all felony defendants processed through the Winnebago County court for a felony between 2010 and 2016 went to trial. Of that small percent of felony defendants who opted for a trial either a jury trial or a bench trial roughly 55% were not convicted at trial. Figure 6. Felony Cases Filed in Winnebago County 6,000 5,000 4,000 3,000 2,000 1,000 0 Felony Filings Source: Analyses by Loyola s Center for Criminal Justice Research, Policy & Practice of aggregate, published data from the Administrative Office of the Illinois Courts Annual reports. *The number of felony filings in may have reflected the number of charges rather than the number of cases being reported to AOIC.

16 16 Sentencing of Those Convicted of a Felony in Winnebago County In Illinois, the possible sentences that can be imposed on those convicted of a felony-level offense are dictated by state statute, with the minimum and maximum allowable sentences to either prison or probation set by state law. In Winnebago County, as in most Illinois counties, the majority of people convicted of a felony offense are sentenced to probation rather than prison. Illinois felony crimes are grouped into specific felony classes by the Illinois General Assembly, ranging from First Degree Murder, Class X felonies, and then Class 1 through 4 felonies. Class 4 felonies are the least serious felony-level offenses in Illinois, and allow a sentence of up to 30 months of probation or between 1 and 3 years in prison (Figure 7). As the seriousness of the felony conviction offense class increases (i.e., goes from 4 to 1, to X and Murder), the statutorily allowable sentence also increases. All Class X felonies require the imposition of a prison sentence of 6 to 30 years, and all Murder convictions carry a mandatory prison sentence of 20 to 60 years (or longer, up to natural life, depending on specific elements of the crime being present). Figure 7. Penalties for Felony Crimes in Illinois Category of Crime Usual Prison Term Probation Term Length of MSR (Postprison supervision) 1 st Degree Murder years Not allowed 3 years Class X 6-30 years Not allowed 3 years Class years Up to 4 years 2 years Class years Up to 4 years 2 years Class years Up to 2 ½ years 1 year Class years Up to 2 ½ years 1 year Source: When examining the characteristics and trends of those convicted and sentenced for felony-level offenses, there are a couple of different methods to examining and understanding sentencing patterns. First is to consider the sheer number of individuals convicted of a felony and sentenced in Winnebago County. These analyses reveal that, as a result of felony arrests and case filings decreasing between 2010 and 2016, the total number of sentences imposed on convicted felons also decreased 10% during that period, a trend similar to that seen in the rest of Illinois. 14 However, when 14 Excluding Cook and Winnebago County the number of sentences imposed on convicted felons decreased by 9% from Source: Analyses by Loyola s Center for Criminal Justice Research, Policy & Practice of aggregate, published data from the Administrative Office of the Illinois Courts Annual reports.

17 17 the types of sentences were disaggregated, some different patterns emerged. For example, the number of sentences to probation increased almost 4% between 2010 and 2016, while the number of sentences to prison decreased 40% during that period. By comparison, in Illinois outside of Cook and Winnebago counties, sentences to probation decreased 3%, and prison sentences fell by 25%. More current data from the Illinois Department of Corrections (IDOC) confirms this trend: between state fiscal years (SFY) 2010 and 2017, IDOC received 33% fewer inmates sentenced from Winnebago County, falling from 832 to 559, proportionately similar to the decrease seen in the rest of Illinois. 15 In fact, the admissions to IDOC from Winnebago County in SFY 2017 was the lowest number since 1999 (Figure 8). Figure 8. Winnebago County Total Court Admissions to IDOC 1, Source: Analyses by Loyola s Center for Criminal Justice Research, Policy & Practice of data provided by the Illinois Department of Corrections Planning and Research Unit. Another way to examine the sentencing patterns for those convicted of a felony offense is to examine the percent of those convicted of a felony (i.e., eligible to be sentenced to prison) that receive a prison sentence. Doing so reveals that, as a result of the number of prison sentences decreasing, while probation sentences increased slightly, in Winnebago County the proportion of convicted felons sentenced to prison has also decreased. For example, between 2010 and 2016, the percent of convicted felons sentenced to prison in Winnebago County decreased from 31% to 20% (Figure 9). In Illinois outside of Cook and Winnebago counties, the percent of convicted felons sentenced to prison 15 IDOC received 29% fewer inmates sentenced from Illinois outside of Winnebago and Cook counties between SFY 2010 and 2017.

18 18 decreased from 42% in 2010 to 32% in Importantly, the percent of convicted felons being sentenced to prison in Winnebago has deceased steadily since 2006, when more than 40% of convicted felons were sentenced to prison. During this period of a lower rate of prison utilization, the overall Index crime rate in Winnebago County also decreased consistently. Some of the differences across jurisdictions in the likelihood of convicted felons being sentenced to prison can be explained by differences in the types of conviction offenses (i.e., more serious felony classes) or differences in the seriousness of the offender (i.e., more extensive criminal history). However, even after statistically controlling for the influence of the conviction offense and offender characteristics, the odds of being sentenced to prison in Winnebago County are lower than when compared to Illinois as a whole, and likely reflects a higher utilization of treatment courts and rehabilitative programs. Figure 9. Percent of Felons Convicted in Winnebago County Sentenced to Prison 50% 45% 40% 35% 30% 25% 20% 15% 10% 5% Winnebago Illinois Outside Cook County 0% Source: Analyses by Loyola s Center for Criminal Justice Research, Policy & Practice of aggregate, published data from the Administrative Office of the Illinois Courts Annual reports. Detailed analyses of the characteristics that influenced the imposition of prison sentences on convicted felons in Winnebago County using CHRI data 16 revealed that the three most influential factors were the felony class of the conviction offense, whether the convicted felon had been 16 Source: Analyses by Loyola s Center for Criminal Justice Research, Policy & Practice of data provided by the Illinois Department of Corrections Planning and Research Unit and CHRI data generated and provided by the Research and Analysis Unit, Illinois Criminal Justice Information Authority.

19 19 previously sentenced to prison, and the convicted felon s age. Convicted felons were more likely to be sentenced if they were convicted of a serious felony, if they had been previously sentenced to prison, or if they were younger offenders (those between 18 and 24). Within the sample examined of those arrested, and ultimately convicted for of a felony-level offense during the 2012 to 2014 period, 37% were sentenced to prison overall. However, of those who had previously been sentenced to prison, 62% received a prison sentence for the current conviction, compared to 29% of those who had never previously been sentenced to prison. As would be expected, 100% of those convicted of Murder or a Class X felony were sentenced to prison, while 23% of those convicted of a Class 4 felony were sentenced to prison. Finally, 43% of convicted felons between 18 and 24 were sentenced to prison, compared to 35% of those 25 and older. Of those convicted of a felony, men were slightly more likely to be sentenced to prison after controlling for the influence of other characteristics, while the defendant s race did not appear to be related to whether or not a prison sentence was imposed. The substantial decrease in the proportion of convicted felons sentenced to prison in Winnebago County is likely due to a number of factors occurring simultaneously. First, Winnebago County enhanced and expanded a number of their diversionary programs designed to reduce their reliance on prison and enhance the services provided to felony offenders on probation supervision. Second, it is possible that as a result of a newly elected State s Attorney in 2008, there was a change in the practices and policy within the State s Attorney s Office. It is also possible that the characteristics of the cases moving through the system have changed. Arrest data suggests that fewer of the cases in Winnebago County during this time period involved younger offenders, a characteristic found to increase the imposition of a prison sentence. Collectively, the enhancements to the diversionary programs, changes in policy and practice, and some changes in the characteristics of those matriculating through the felony courts all likely played a part in explaining this decreased use of prison in Winnebago County. More detailed, and more current, analyses of the factors influencing sentencing practices and patterns in Winnebago County will be conducted in the future as part of the CJCC strategic planning efforts to better understand what has led to these changes. Changing Correctional Populations There are three possible jurisdictions under which people convicted of a felony and serving their sentence in Winnebago County can be supervised: in prison, on probation or on Mandatory Supervised Release (MSR or parole ). Increases in crime and arrests during the 1980s and 1990s, coupled with the changing sentencing practices for those convicted of a felony in Winnebago County in the past decade described above, have led to changes in the number of felons under the custody of the criminal justice system in/from Winnebago County. As described above, the majority of convicted felons in Winnebago County (and in most Illinois counties) are sentenced to probation. As a result, probation is where the largest category of felons

20 20 under the custody of the justice system are supervised. Between the mid-1980s and the early 2000s, the number of felons on probation in Winnebago County increased four-fold, from just over 500 in 1986 to more than 2,000 by 1999 (Figure 10). The use of probation as sentence actually decreased during the late 1990 s and early 2000 s. However, an increase in the use of probation in sentencing convicted felons in Winnebago County over the past 6 years has led to an overall increase in the number of felons on probation. The number of felons on probation at year-end in Winnebago climbed from 1,870 on December 31, 2010 to 2,328 on that same date in 2016, a 24% increase. By comparison, the number of felons on probation at year-end in Illinois outside of Cook and Winnebago counties decreased 6% during that same time period. At the end of 2016, there were a total of 4,688 felons under the custody of the justice system (including probation, prison and MSR) from Winnebago County, with 49% of them supervised on probation. The long-term trends in the number of individuals in prison from Winnebago County, as a result of either being sentenced to prison or being returned to prison as a technical MSR violator, increased dramatically during the 1990s through 2010 as a result of increases in crime, arrests, and the proportion of convicted felons being sentenced to prison during much of that time period. For example, at the end of the state fiscal year (SFY) 1990 there were fewer than 500 adults in Illinois prisons from Winnebago County, but by the end of SFY 2010 there were 3-times more (1,600 [Figure 10]). 17 However, the decrease in crime, felony arrests and filings, combined with the lower likelihood of felons being sentenced to prison, resulted in a decreased prison population. The number of people in prison from Winnebago County at the end of SFY 2017 was 1,237, or 23% lower than on that same date in By comparison, the number of people in prison at the end of SFY 2017 from Illinois outside of Cook and Winnebago counties was only 4% lower than at the end of SFY Of the 4,688 felons under the custody of the justice system (including probation, prison and MSR) from Winnebago County at the end of 2016, 28% of them were incarcerated in an Illinois state prison. 17 Source: Analyses by Loyola s Center for Criminal Justice Research, Policy & Practice of data provided by the Illinois Department of Corrections Planning and Research Unit.

21 21 Figure 10. Prison, Felony Probation, and Parole (MSR) Population in Winnebago County 3,500 3,000 2,500 2,000 1,500 1, Adults IN prison from Winnebago County Adults on Probation in Winnebago County Adults on Parole (MSR) in Winnebago County Source: Analyses by Loyola s Center for Criminal Justice Research, Policy and Practice of IDOC data provided by IDOC s Planning and Research Unit, aggregate published data by IDOC, and aggregate published AOIC data. Finally, as described previously, once an inmate has served their sentence they are released from prison onto MSR. Of the 4,688 felons under the custody of the justice system (including probation, prison and MSR) 18 from Winnebago County at the end of 2016, 22% of them were being supervised by IDOC parole agents in Winnebago County. Generally, the number of people on MSR in Winnebago County has followed the trends in releases from IDOC, which is influenced by the admissions in previous years (Figure 10). Thus, when the number of those in prison is combined with those on MSR in Winnebago County, more than one-half (51%) of the sentenced felons from Winnebago County and under the jurisdiction of the justice system were under the custody/supervision of IDOC, with the remainder on probation. 18 Source: Analyses by Loyola s Center for Criminal Justice Research, Policy & Practice of aggregate, published data from the Administrative Office of the Illinois Courts Annual reports and data provided by the Illinois Department of Corrections Planning and Research Unit.

22 22 Reentry and Recidivism of Those Released from Prison Who Return to Winnebago County An important tenet within the area of sentencing and prison populations is that almost everybody sentenced to prison will eventually be released from prison. Although individuals convicted of murder serve extremely long sentences and a substantial portion are never released, these individuals account for a very small percent of all admissions to prison. In Winnebago County, for example, less than 1% of all the admissions to prison from Winnebago County between SFY 2010 and 2017 were for murder. Thus, most individuals sentenced to prison are released, and for the most part, those individuals who are sentenced to prison from Winnebago County return back to Winnebago County upon their release. Among those returning from prison to Winnebago County between SFY 2011 and 2015, 84% were originally sentenced to prison in Winnebago County. 19 Further, of those released from prison and returning to Winnebago County, the majority return to very specific neighborhoods within Rockford. Indeed, 87% of all prison releasees coming back to Winnebago County returned to Rockford, and two-thirds (68%) or all releasees coming back to Winnebago County returned to four specific zip-codes in Rockford (61101, 61102, 61103, and 61104). Again, most inmates released from prison return back to where they lived prior to prison, usually living with family members or friends. However, it is also important to keep in mind that most individuals sentenced to prison from, and returning to, Winnebago County, were not incarcerated in prisons in close proximity to Winnebago County/Rockford. In fact, only 31% of the inmates who returned to Winnebago County from prison were housed in IDOC correctional centers in the northern part of Illinois, limiting the ability of family members and community organizations that could support re-entry and reintegration from maintaining or establishing positive relationships and contact with those in prison. Of particular concern for many, and one of the measures used to gauge the effectiveness of correctional interventions, is the degree to which those processed through the criminal justice system recidivate, or continue to engage in criminal behaviors. Although measuring someone s involvement in criminal behavior is difficult, given that such a large portion of crimes are not reported or known to the police, one way that recidivism has been measured is whether or not someone is rearrested for a new crime following the imposition or completion of their sentence. To examine recidivism among those released from prison who returned to Winnebago County, data were collected and analyses were performed to determine the rate and patterns of rearrest among those released from IDOC between SFY 2011 to 2014 who returned to Winnebago County. These analyses revealed that, overall, 56% of those released from prison were rearrested for any type of crime within three years of their release, a rate statistically similar to that seen in Illinois as a whole (Figure 11). Consistent with 19 Source: Analyses by Loyola s Center for Criminal Justice Research, Policy & Practice of data provided by the Illinois Department of Corrections Planning and Research Unit.